Planning Committee 26 MAY 2004

Report of Head of Planning, Transportation and Regeneration

Author/Contact Officer: Lindsey Richards Development Control, Team Leader Tel: 01604 838999

Planning Application N/2004/472 Installation of floodlights to rugby pitch and construction of all weather pitch with floodlights and fencing Northampton School for Boys

Recommendation

That the application be APPROVED subject to the conditions appended and for the following reason:

The proposed development will provide enhanced school facilities and for the wider community without harm to interests of acknowledged importance in accordance with Policy H20 of the Northampton Local Plan.

1. **Background and History**

1.1. The Northampton School for Boys is part of the schools review which is currently being implemented to move from the 3 tier to 2 tier education system. By necessity a number of schools are needing to expand to take the additional years and as the majority of schools are in existing built areas there is little opportunity to extend beyond existing boundaries for either new build or playing field provision. Consequently there is additional pressure on existing playing fields and sports pitches.

1.2. In April 2002 a county wide strategy was initiated to analysis playing pitch provision within the county, further work was undertaken by this Council to ascertain the distribution of pitches throughout the Borough. This sub-area analysis subdivided the Borough into 8 partnership areas, Area 5 including Eastfield, Headland and Weston wards. The application site falls within Weston ward (area 5) and which is identified as having a shortfall of rugby pitches.

1.3. The new Northampton Academy which specialises in sport is to run a school sports co-ordinator programme, with 4 other secondary schools, including Northampton School for Boys. The objective of the programme is to provide enhanced facilities, teaching and coaching in a variety of sports. Northampton School for Boys will be a major provider for rugby, football and hockey and will also link with other schools including primary schools and local clubs and organisations.

1.4. Existing facilities at The Boys School comprises 1 cricket square, 2 grass rugby pitches, 1 football pitch, 4 tennis courts and 1 hockey pitch. The school are looking to reorganise these existing facilities so as to cater for the additional number of pupils under the schools review and to enhance provision as part of the school sports co-ordinator programme.

2. **The Proposals**

2.1. **All Weather Pitch**

The current proposal is for the construction of a floodlit all-weather pitch on an existing pitch in the south west part of the site adjacent to its boundary with St Andrews Hospital. It is sited on lower land which is approx 6m below the level of Chipsey Avenue and its dimension would be 70m X 100m. It is proposed that the pitch be fenced with galvanised weldmesh to a height of 3.6m but increasing to 5m behind the goals. The all weather pitch would be lit with 6no. X 13m columns and the nearest of which would be sited approx 200m from the nearest dwelling in Cranmere Avenue. It is proposed that the lights be operational until 2200hrs.

2.2. **Rugby Pitch**

The existing rugby pitch which it is proposed to floodlight is on the mid terrace below the cricket pitch and above the level of the proposed all weather pitch. The nearest column is approx 80m from the nearest dwelling. This pitch will remain grass and it is proposed to be lit with 6no. 15m columns. Being a grass surface its use is limited to average of 3 matches per week and will be reserved for the 1st xv games and the more prestigious matches. Whilst the majority of the matches are likely to commence shortly after the end of the school day, there are likely to be some evening fixtures. As per the lighting for the all weather pitch it is proposed that operation hours run until 2200hrs.

2.3. The proposed form of floodlighting is Phillips Optivision which is lighting specific for sports pitches and which avoids exaggerated light and dark patches upon the pitch. The maximum tilt angle of the floodlight is 10º from the horizontal plane. With regard to light spillage beyond the two pitches, ISO contours have been provided and which have been imposed upon an o.s base to show the respective 100, 10, 1 contour lines. 3. **Planning Policies**

3.1. **Development Plan** Section 54A of the Town and Country Planning Act 1990 requires an application to be determined in accordance with the Development Plan unless material considerations indicate otherwise.

3.2. The current Development comprises the Northamptonshire County Structure Plan and the Northampton Local Plan. Whilst there are no specific policies relating to floodlighting of playing fields, the written justification within the local plan at para 7.9 recognises the potential of more intensive use of recreational site and use by the wider community. Policy H20 of the Northampton Local Plan seeks to protect residential amenity.

3.3. **Other Guidance** PPG17 Planning for Open Space, sport and recreation – July 2002.

4. **Representations & Consultations**

4.1. **Environmental Health** No comments provided that the logistic plan submitted with the planning application is implemented.

4.2. **Sports Development Team** **Northamptonshire County Council** Support the proposals for floodlighting existing grass pitch and construction of an all weather pitch. The reorganisation of the schools in Northampton is to raise standards of teaching and attainment in all subjects, the provision of appropriate and high quality facilities is essential. This school is an essential partner in the schools sports co-ordinator programme, especially in field of rugby and hockey. The whole scheme will raise attainment, improve young peoples health and lifelong involvement in physical activity. Schools are currently being encouraged to extend their links with the local community and the managed use of school facilities by community sports clubs allows students to continue sporting interest outside school day. The playing pitch strategy identified a shortfall of playing field provision in central Northampton area, one solution suggested by partnership was all weather pitch at The Boys School. The recently accepted managed community use of school sports pitches strategy will ensure school playing fields will be available for sports club and organisations on a managed basis. The County Council is a keen supporter of the type of lighting currently being proposed, particularly in residential areas as it minimises light pollution and spillage. Parking is available adjacent to the rugby pitch within the school grounds and at the Old Northamptonians Sport and social club. The proposed hours upto 2200 hrs are consistent with other facilities. Floodlit grass pitches are limited in their use (2-3 matches per week).

4.3. **Rugby Football Union (community rugby and operations department)**

- the proposal would provide a fantastic opportunity for rugby union and in promoting that role of sport, physical activity and recreation within the wider agenda.

- Northampton school for boys is at the centre of the considerable amount of work that has taken place in Rugby development over the past 2 years. The existing facilities have enabled the Rugby Football Union to us the school as a centre for its coach, club, volunteer and player development programmes. The addition of floodlighting would enable us to extend this work. The school has also worked in partnership with the five community rugby clubs within the town. Provision of high quality evening us facilities would enable the rugby club to grow stronger and to access new areas. The sport offers opportunities to engage the whole family through coaching, referee and volunteering. Since winning The World Cup a mori poll has indicated a 50% increase in the interest in the game, need to build on this increased interest.

- No hesitation in supporting this planning application and am certain it will go a long way to providing a lasting legacy for support in the local community.

4.4. Peter Haddon and Partners – Architects

- proud to be involved with the development of Northampton school for Boys over a number of years and believe this project is an essential step to further develop the excellent reputation the school currently enjoys and to enable it to compete at a national level in both rugby and football. The project will contribute to Northamptonshire School Sports Development Programme and the national challenge to improve fitness standards and provide opportunities for healthy exercise including during the dark winter months.
- From experience of other lighting projects can confirm that the modern lighting the techniques/system proposed by the school will prevent any intrusive spill of light.

4.5. School Development Director – Northampton School for Boys

- committed to making provision for our younger generation to allow increased access to the benefits of sport. Recent government figures released shows that obesity is costing the nation 2 billion pounds per year with Britain being most obese nation in western Europe.
- Vital to get the population `active` and these proposals will give many youngsters the opportunity to commit to a sporting life style all year round.
- To offer access in the dark period will have huge benefits to our youngsters on both health and social agendas.

4.6. Northampton School for Boys - Assistant Head Teacher Support application in basis of:

- part of SSP programme, part of drive to reduce obesity
- allow extension of use of facilities
- allow delivery of sport for wider section of community
- parking is provided on site and at the Cripps Hall car park Would support any measures that the Council feel fit to prevent rat-running.

4.7. Northampton School for Boys – Chair of Governors

- as chair of governors support application. Neighbours objections are based on light pollution, traffic and car parking and also lack of need as school could use the existing scouts pitch. The existence of this pitch has nothing to do with sports provisions at the Boys School and is therefore immaterial and independent to the needs of the school. School have taken great care to resume correct lighting system which will reduce light spillage.
- Take issue of parking in Chipsey Avenue very seriously, will continue to encourage use of Cripps Hall car park.
- These proposals are vital to enhancing provision of sports at School.

4.8. Arsenal Soccer School Excited to hear of your plans to enhance sporting facilities which include addition of new floodlit astro turf surface. The proposals will lead to your venue becoming one of the most prestigious and sought after reuse for activities such as ours and may others. Our strategy is to develop the young and unnatural talents that lie with the Northamptonshire area, this requires facilities which match our ambition. 4.9. 46 Letters of objections have been received to date, a list of addresses of all objectors is appended. The grounds for objection are as follows:-

- Floodlighting will be an extension of light pollution to detriment of general amenity.
- Existing floodlit facilities include existing tennis courts at school and tennis club, rugby club on Rushmere Road and facilities at the Old Northamptonians.
- Car parking is inadequate to meet current needs, proposal will generate more traffic and more parking in local streets.
- Floodlit rugby pitch already exists in close proximity and there are already sufficient all-weather pitches elsewhere in the Borough to meet needs.
- Access onto Chipsey Avenue has been blocked on numerous occasions by school traffic which has serious implications for access for emergency vehicles and has been used for parking of coaches on occasions.
- Proposal gives no consideration to the surrounding ecology.
- Cranmere Avenue and Rushmere Avenue are frequently used as short cuts by drivers often at excessive speeds.
- Despite previous objections to the increased demands by Northampton School for Boys, the wishes of local residents have been vetoed. For many local residents frustration is being replaced by resentment that quality of life and right to live safely is being compromised.
- Concerned that non residents will use our streets to park their vehicles and return to them late at night. Raise question if there are any future plans to change current road system and consider making Cranmere Avenue a dead-end with access only.
- Need to consider existing context the proposals in its, i.e. use of Cripps Hall, floodlighting of tennis courts and new club house in ON’s sports field, increased traffic in vicinity and parking that takes pace in our street, future plans for increase no. of pupils.
- Offer made by school for a meeting has not been taken up but would welcome meeting with Borough Council so that entirety of what school and ON’s are planning is known.
- Money should be out aside to mitigate existing and future problems.
- Fed up with drip, drip, drip of small applications which all together add up to a considerable erosion of our amenity and our environment.
- Note no policies on light pollution with the local plan and interesting to speculate whether an application of this nature would be allowed in this location if such policies were in place.
- Appointment of ‘evening sports co-ordinator’ implies running facilities during unsociable hours perhaps for training for other clubs, schools etc which means more traffic in the area.
- Current access to pitch is poor and parking totally inadequate and will result in more parking in our streets.
- No necessity for further pitches/facilities in the area.
- The site is not large enough to take what has amounted to a 100% increase in pupil numbers over last 30 years.
- Fencing around the rugby pitch and around the whole school will be an eye-sore, like looking over a prison and will create an immediate in-balance in the relationship between our properties and the school.
- Floodlighting combined with noise and general disturbance levels will be detrimental to character of the area and amenities contrary to Policy H19 of the Northampton Local Plan.
- The scouts rugby pitch is underutilised and school should be encourage to use this facility.
- Speed bumps should be provided in the area.

4.10. 79 no. letters of support have been submitted to date. A list of the addresses are appended to this report. Reasons for supports are as follows:-

- project is part of the Schools Sports Co-ordinating Programme which is a significant element in the Northamptonshire Re-organisation of schools.
- Part of the government drive to reduce obesity and provides opportunities and the facilities for healthy exercise.
- Will enable sporting activities to take place during the dark winter months, impossible without floodlights.
- Will enable school to deliver sport to a wider section of our community.
- Will allow school to further develop the excellent reputation it is currently establishing and enable it to compete at a high level nationally, both in rugby and football.
- The proposed lighting system, Philips optivision will minimise any light pollution.
- School has worked hard to alleviate problems for neighbours by providing Cripps Hall car park (156 places) and on site parking (100). This exceeds many schools within the town which have limited on site parking.
- School grounds are often plagued by unwelcome visitors after school hours and often schools neighbours bear the cost of such intrusive activity in terms of vandalism and graffiti. Anything a school can do to minimise facilities laying dormant is to be welcomed and such unwelcome visitors may be the beneficiaries.
- From experience on living next to floodlit football pitch in Kislingbury the lights to which are on until around 10pm and which do not affect my evenings once curtains are closed.
- The county is losing playing pitches to development so enhancement of existing pitches should be welcomed.
- From involving pupils in sport they succeed far better in schooling, character is strengthened and self esteem increased with team work.
- Realise that when such facilities are in use may be problems for local residents but the use of such facilities are so vital for successful community that far outweigh ‘niggly’ problems such as noise, traffic and parking.
- There is a need to provide an alternative to drinking and general idleness which seems to be increasingly to prevail in youth culture today.
- Demands of national curriculum make it difficult to arrange fixtures during normal school day which creates problems from October to March.
- School teams generally arrive by coach and park on Old Northamptonians site and matches do not generally attract many spectators.
- Need to continue to develop young players from the town and country concerned also with national dimension where British clubs beginning to rely more and more on non British qualified players to strengthen their teams. This aspect has been well documented in the press and is of great public concern. Write as qualified coach and member of East Midlands Rugby Union and aware of need for better facilities.
- These facilities will be for the benefit of Northampton and its future role and position in sport.

5. **Observations**

5.1. **Light Pollution** It is acknowledged that floodlighting can have a marked impact on the local environment, it can be both environmentally and visually intrusive causing nuisance from both glare and light spillage. The majority of objections to this proposal have referred to concerns over increased light pollution, the locality already being affected by existing floodlighting at nearby clubs, such as Rushmere Road tennis clubs, the scouts rugby pitch and the ON’s.

5.2. To assist the assessment of light spillage and glare the applicants have submitted full details of the lighting system together with horizontal spill light calculations in the form of ISO contour maps. These details are based on 15 metre columns for the grass rugby pitch and 13m columns for the all weather pitch, it generally being recognised that the taller the column the greater the scope for directing the light downwards thereby allowing the control of light spillage. Furthermore, the tilt angle of the light is crucial so as allow the lamp to be hidden and reduce glare to players, surrounding residents and motorists. The lighting scheme proposed by the school allows maximum tilt angle of only 10º from the horizontal plane.

5.3. The horizontal spill light calculation has been overlaid onto 1:1250 os plans with the lux being provided within the pitch areas and respective 100, 10 and 1 lux contours are shown. The plan for the grass rugby pitch which is closer to existing residential properties is appended to this report. Furthermore due to the design of the lights, there will be no upward spill of light.

5.4. On the basis of the information provided, the proposed height of the column and the design of the lights it is not considered that the floodlights will have any significantly adverse impact on the locality or amenity of adjacent residents. The light will be contained within the pitch area with minimum spillage. The pitch and players will be clearly seen when the lights are in operation and will appear to be playing in a light box, local residents will see the sporting activity however, the nearest residential property is over 70 metres from the rugby pitch and nearly 200m to the all weather pitch. Furthermore the lighting will be used in darker winter months when curtains are likely to be drawn.

5.5. **Noise and Disturbance** The areas proposed to be floodlit are currently laid out as playing pitches, there are no restrictions on their use and during summer months, when evenings are light, they are available for use late into the evening. It is during these months that neighbours would have doors and windows open and be sitting in gardens. The objective of the floodlighting is to allow extended use in the darker winter months, and at times when the weather is colder and local residents may find themselves closing windows and doors.

5.6. The rugby pitch nearest to the adjacent residential properties will remain a grass surface and as such its use is likely to be restricted to 2 or 3 matches a week to ensure it is maintained to match standard. The all weather pitch will obviously be more intensively used but is a significant distant from the nearest residential dwelling.

5.7. Having regard to the time of year that the floodlights will be used, and distances to properties, it is not considered that residents will suffer undue noise and disturbance.

5.8. **Traffic/Parking** The issue of traffic and parking associated with the school, as with many other schools in the town, is a long standing issue with many of the local residents. Currently there are over 100 spaces on site with the use of a further 150 in the Cripps Hall car park. The school is in fact one of the few schools in the town with off site parking facilities available, the provision of such was originally tied to the use of the Cripps Hall, but its use is actively encouraged by the school at all times. Obviously any visitor the school is entitled to park within the adjacent public highways, however the school actively discourage this and employ security staff to direct vehicles to the Cripps car park. On occasions there may be conflict with the use of the car park with the Old Northamptonians.

5.9. It is unlikely that the increase use of the existing pitches due to floodlighting will significantly increase traffic to the school, especially at times when on site parking will not be available. Parking is provided adjacent to the changing rooms and the rugby pitch and it is very probable that players will utilise this area for convenience.

5.10. Residents have raised concerns over the increase in traffic using Chipsey Avenue and Cranmere Avenue as a rat run. Regrettably this is becoming more common throughout the town, where quiet residential streets are now starting the bear the burden of increased traffic congestion and signalised junctions.

5.11. **Visual Amenity** The use of 15m columns may at first appear to be excessive. However it is the height of the columns which dictates the amount of horizontal light spillage. Shorter columns will require a greater angle of tilt for the lights which will increase light spillage and glare.

5.12. On each playing area it is proposed to have 6 columns, and whilst these are of a significant height, ground level is lower than that of the school against which they will be seen.

5.13. It is proposed that the fencing around the all weather pitch will be galvanised weldmesh to a height of 3.6m increasing to 5m behind the goals. This area is situated at the lowest level of the site and at the furthest point from residents in Chipsey Avenue. It is not considered that the fencing will cause any undue harm.

5.14. **Community and Educational Benefits** The need to increase the availability and usage of existing pitches is essential to ensure adequate facilities as part of the current schools review. Bearing this in mind together with the Council’s work on identifying areas where there is a shortfall in playing field provision, (Weston ward having a current short fall in rugby pitches) the increased availability of the pitches to both the school and other sporting organisations can only be viewed as being a benefit to the wider community. This together with current national reports on obesity, especially in youths, shows a progression in the right direction to encouraging more sporting activity and community involvement.

6. **Social Impact**

6.1. As outline above it is not considered that the proposal will have a significant adverse impact on local residents so as to warrant the refusal of planning permission and that there are wider benefits to the local community including increased sporting activity, availability of facilities to other groups outside school hours and progressing a crucial role that the school will provide in the school sports co-ordinator programme.

7. **Sustainability Implications**

7.1. The floodlighting of the pitches and provision of an all weather pitch will firstly allow more intensive use of facilities which are perhaps currently underutilised and secondly allow community use bringing the wider social and economic benefits.

8. **Background Papers**

   **Local Government (Access to Information) Act 1985**

8.1. N/2004/472. CONDITIONS

(1) The development hereby permitted shall be begun before the expiration of five years from the date of this permission.

Reason: To comply with Section 91 of the Town and Country Planning Act 1990.

(2) The floodlights shall not be used between the hours of 2200 and 0900.

Reason: In the interests of general amenity.

(3) The tilt angle of all lights shall not exceed 10° at any time.

Reason: In the interests of general amenity. Letters of objection – received from the occupiers of:-

9 Rushmere Avenue 3 Chipsey Avenue 200 Billing Road 22 Rushmere Road 9 Cranmere Avenue 24 Cranmere Avenue 17 Chipsey Avenue 1 Chipsey Avenue 28 Cranmere Avenue 30 Cranmere Avenue 27 Cranmere Avenue 66 Rushmere Road 11 Chipsey Avenue 46 Rushmere Road 16 Rushmere Road 3 Cranmere Avenue 9 Chipsey Avenue 23 Cranmere Avenue 11 Rushmere Road 36 Rushmere Road Letters in support – received from the occupiers of:-

8 Edgehill Road, Duston 59 Stimpson Avenue, Abington 46 Pinewood Road, Spinney Hill 47 Glenfield Drive, Great Houghton 20 Streeton Way, Earls Barton 8 Lewin Close, Rothwell 11 St Peters Way, Cogenhoe 34 Beech Lane, Kislingbury 18 Hazelwood Road 2 Lutterworth Road, Abington 9 Cherry Blossom Close, Little Billing 9 Watersmeet Three Chimneys, Gayton 132 Welford Road 57 Sherwood Avenue 34 Greenglade, West Hunsbury 44 Berkeley Close 4 South Priors Court, Lings 65 Bridgewater Drive 10 Lime Avenue, Abington 9 Harefoot Close 16 Church Street, Cogenhoe 24 Lincoln Street, Kingsthorpe 633 Obelisk Rise 13 Broadmead Avenue Flat 3, 119 Abington Avenue 16 Casterbridge Court 3 The Avenue, Dallington 61 Denmark Road 1A Little Street, Yardley Hastings 3 Pelham Court 7 Redmoor, Towcester 25 Cattle End, Silverstone 24 Lincoln Street 30 Southampton Road 45 Green Lane, Kettering 26 Berkeley Close (vise chair governing body) 37 The Slip, Brixworth 32 Wood End Lane, Pertenhall 9 Robina Close 19 St Mathews Parade x2 292 Billing Road East 30 Hardwick Road, Wellingborough 42 Grasscroft, Kingsthorpe 29 Park Avenue North 4 Hartwell Road, Ashton 23 Newton Street, Olney Lodge Farm, West Haddon Road, Guilsborough 284 Welford Road 31 Coaching Walk, Westone 24 Rushy End 16 Croft Lane, Roade 33 Provence Court 7 Turner Street 15 Church Way 13 Ridgeway 26 Cony Walk 1 Sportsman Close, Cogenhoe 35 St Helens Road 122 The Drive 8 Eastern Way, Grendon 18 Denne Close, Corby 8 Isham Close 16 Jupiter Drive, Leighton Buzzard 89 Ivy Road 79 Tanfield Lane Cornerways, Dallington 7 Summers Way, Market Harborough 3 Burton Close, Boughton 203 Glebe Road, Deanshanger 1 Landcross Drive 19 Park Avenue North 49 Park Avenue North 40 Stratford Road, Roade 8 Well Yard 3 Whitegates 10 Winchester Road, Rushden